Editorial
One of the most persistent structural contradictions within Pakistan’s political system lies in its bureaucratic framework. Despite being a federal republic under the 1973 Constitution, the state continues to operate through a unitary bureaucracy — a colonial inheritance that defies both the spirit and the letter of constitutional federalism. The latest debate surrounding the proposed 27th Constitutional Amendment, reportedly aimed at granting formal constitutional protection to this centralised bureaucratic structure, has reignited concerns about the erosion of provincial autonomy.
At the heart of this issue lies a simple yet profound question: can a federal constitution sustain a unitary bureaucracy? The answer, both in theory and practice, is no. Federalism requires distinct administrative, financial, and legislative domains for the federation and its provinces. Yet, Pakistan’s bureaucratic elite — dominated by the remnants of the colonial Civil Service of Pakistan — continues to function as a single, vertically integrated structure, accountable more to Islamabad than to provincial governments.
Follow Republic Policy on YouTube
The 18th Amendment of 2010 was designed to resolve this imbalance by devolving powers to provinces and enabling them to build independent civil services. However, successive governments have resisted this constitutional command. Instead of empowering provinces, administrative control remains concentrated in the federal secretariat, where officers of the Pakistan Administrative Service (PAS) continue to dominate provincial policymaking. The proposed 27th Amendment, rather than correcting this distortion, risks embedding it permanently into the Constitution.
A unitary bureaucracy within a federal state undermines the very essence of democratic representation. It negates provincial legislative autonomy, weakens accountability, and centralises executive power in a manner inconsistent with Articles 142(c), 240, and 97 of the Constitution. If Pakistan is to function as a genuine federation, its administrative structure must reflect that reality. Federalism is not just a constitutional design — it is a political covenant that guarantees balance, diversity, and participation. Preserving it is essential to restoring both governance and national harmony.
